6 CHAIRWOMAN S FOREWORD Mobility and transportation are key-components of urban life. As the world s population continues to grow and becomes more urbanised mobility demands and practices change regarding both quantity and quality.at the same time, the negative effects of transportation growth, which are to a large extent caused by the dominance of road based transport, are of major concern to the cities inhabitants. Air and noise pollution, the fragmentation of landscapes, the destruction of city structures, and the division of the population into mobility have s and have-not s are developments, which cannot be tolerated. In order to balance demand and supply and shape transport systems in such a way that they supply a maximum level of mobility while generating only a minimum of negative impacts, cities recognise the need to find innovative strategies and solutions.the challenges arising from the claim for sustainable development concern cities all over the world. However, no two cities are the same and the actual lines of development are as diverse as the historical, economic, cultural, and technological backgrounds that have brought about the present situation. Nevertheless, there is much to gain by sharing information and exchanging experiences on how other cities deal with the complex and demanding issues connected to urban mobility.the Metropolis network therefore represents a valuable source of information and an important forum for discussion and co-operation. I would like to thank all the cities that have thus far participated in the activities of Commission 4.Their contributions provided the focus and the input for this study, which will be of high value for further co-operation within the network. I would also like to thank the Berlin-based working group and the authors who compiled this report for their dedication and expertise. Ingeborg Junge-Reyer Senator for Urban Development, Berlin President of Commission 4 5

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8 EXECUTIVE SUMMARY The world has encountered the age of urbanisation: more people than ever live in cities today, and the trend towards urbanisation is not only unbroken, yet it also picks up in speed and scale. New megacities are emerging especially in Asia, and already existing city structures are re-shaped in order to meet emerging demands and accommodate new ways of living. These developments also set the framework for a new context for urban mobility. In order to better understand these developments and to compare attempts to deal with the challenges, Commission 4 Urban Mobility Management of the Metropolis network has undertaken a large body of research and stimulated discussion among its 20 member cities. The world-wide trends in urban transport, namely increasing motorisation and car use at the expense of public transport, and the principal dominance of road-bound freight transport with the associated negative consequences all take place in the C4 cities as well. Local conditions, the specific political, social and economic environments and different developments regarding population and urban growth dynamics all lead to the conclusion that there is no simple and moreover no single answer to the great complexity and variety that characterise urban mobility. However, there is a growing need for cities world-wide to share knowledge, exchange ideas and experiences and develop guidelines for future action. The present report therefore takes up the discussion on six thematic areas of urban transportation in a general way as well as from the point of view of the particular situation in Metropolis member cities. Mobility and urban development: The relation between mobility and urban structure is interdependent.while on the one side existing and developing city structures generate the transportation systems they require, on the other side transportation demands and associated systems themselves shape the urban form.at present, enormous challenges arise from the prevailing trend towards the movement of the population into the suburbs.the strategies to deal with the pressure put on the transport system include the establishment of a hierarchical system of (sub-) centres, the development of high density housing estates, the relocation of micro-industries to the suburbs in order to limit commuter travel, the setup of residential areas with low car housing and the strategic planning of residential, service and leisure areas along transport corridors and routes. Curitiba and Bogotá are successful and promising examples for combining urban and transportation planning.the city of Sofia has just drawn up a new master plan that attempts to release transport pressure from the inner city, regain and revitalise public spaces and control the urban growth in a more structured way also from a mobility point of view. Mobility and social cohesion: In cities of the developing world, one of the most pressing issues is the link between poverty and transportation.there paratransit plays an important role in the provision of accessible and affordable transport services especially for the less affluent. Additionally, consideration of gender issues as well as the special needs of the elderly, the physically impaired and the younger generation are crucial for equity in transportation. Low fare offers for special groups of the population can thus be only the first step towards more just transport systems. All over the world, high road accident rates parallel motorisation growth rates, yet perversely the ones mainly affected are those that do not even have a car. Regardless the actual number of fatalities, all cities concluded that reducing accident rates is an objective that should have highest priority.the construction of the Metro 7

9 URBAN MOBILITY MANAGEMENT Line 4 in Sao Paulo as well as the improvement of public bus transport in Ha Noi are examples for addressing poverty issues in transport. In France, the link between social exclusion and the availability of transport has been addressed by the programme Urban Mobility for All launched in Environmental impacts: Today road vehicles are the largest contributors to transportrelated environmental pollution. Especially in urban areas cars and trucks generate noise and air pollution, which can be detrimental to health and the quality of life in cities. A broad spectrum of instruments is thus used to combat emissions. In countries with weak institutional frameworks the introduction of vehicle inspections and maintenance is often regarded as an important step to improve air quality and safety. European cities are in a privileged position due to the standards set by the EU air quality framework and daughter directives, and the request to elaborate action plans in non-attainment areas. Mexico City s Inspection and Maintenance Programme commenced in 1989 is a good example for clearing the air in the city. The HEAVEN project carried out in five European cities proves that using hightech information systems can help to reduce air and noise pollution, which is continued in the Citeair project as the focus is being moved to air quality management. Financing urban transport: A city s transport system consists of various more or less integrated sub-systems, which all require different investments and generate different, partly immeasurable revenues. However, severe funding problems in many cities frequently cause shortages in urban transport infrastructure and services. In many member cities public transport is constantly producing deficits; so subsidisation becomes an issue. However, most cities apply a mix of financial instruments that also include participation of the private sector.also, making financial flows transparent and evaluate the outcome of investments are areas that need to be improved.the case study of Barcelona shows the successful integration of the different modes within the public transport systems and the establishment of a transparent financing scheme by applying an integrated planning approach. Congestion charging in London is another excellent example of reaching a broad spectrum of improvements for all citizens through application of financial instruments. Urban Freight Transport Management: On the urban scale freight transportation is usually road-bound because of the increasing demand for specialised small-unit goods and flexible delivery.what is more, urban freight transportation will become even more important as the economies of cities in developing countries continue to grow and the still existent nonmotorised means of freight transport will be replaced by trucks and vans. There are some promising approaches in C4 cities, which attempt to better protect and increase the use of rail and waterway transport ways. Further measures include the integration of road based goods traffic and the optimisation of supply chain flows.the underlying objective of all of these approaches is to limit the negative effects of freight transport on cities and people while still allowing for transport flows that meet the goods demand. High efficiency non-motorised transportation of goods makes up the case of the Lunch Box Carriers of Mumbai. In contrast, the Miracle Project in Barcelona is an example for implementing new concepts for the distribution of goods by using information and communication technology. The CargoTram in Dresden shows that the inner city light rail can be used for urban freight transport. 8

10 SAFEGUARDING MOBILITY - TRANSFORMING TRANSPORTATION Mobility Planning and Public Participation: A multitude of actors are involved in the transportation planning process, the interaction of which often proves to be one of the major obstacles to comprehensive planning and the implementation of innovative strategies. In many C4 cities, planning is further complicated by the fact that urban growth has exceeded city boundaries and now largely takes place on the territories of neighbouring municipalities. In developed countries, the situation is sometimes equally difficult, even though these countries usually have long established planning systems.the same holds true for public participation, where only few mechanisms exist, which often lack efficiency and successful application. In order to overcome the shortage of co-ordination, efforts are being made to combine urban and transport planning. Case studies that offer solutions to the planning problems refer to Berlin s Mobil 2010 with its stakeholder involvement in transport planning, and to the Singapore Land Transport Authority (LTA), which is a good example for strengthening planning institutions under a single-tier government. Naturally, the issues considered in this report are not conclusive, yet they do indicate some of the main areas where there is an immediate need for action. Moreover, it needs to be kept in mind that the ongoing transformation of mobility and all the factors that influence both, the demand and the supply side, will in turn create new conditions, new challenges and also new solution approaches. 9

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12 1.TRENDS AND ISSUES IN URBAN TRANSPORTATION Mobility and transportation are key components of urban life in cities all over the world. People desire mobility both for its own sake and because it enables them to overcome distances between different places to satisfy different needs. Businesses desire mobility because it is vital for their operation and functioning. However, the need and want to be on the move also cause a number of negative impacts, such as air pollution, congestion, noise, greenhouse gas emissions, disruption of neighbourhoods, accidents, etc.these problems are most pronounced in urban areas, which in today s globalised world are focal points of economic and social development.transportation in cities is often dominated by the use of the car, which despite measures aimed at restricting its use turns out to be in higher demand than ever. The tension between the human desire for mobility and the concern about the negative impacts of the physical realisation of this desire in form of transportation raises the question on how to shape transportation systems that supply a maximum level of mobility while generating only a minimum of negative impacts. Hitherto most cities have acknowledged the fact that they need to rethink mobility and implement measures for achieving urban transport systems that satisfy the claim for sustainability, however the problems that arise and the challenges they are faced with are as numerous as the attempts made to tackle them Introduction The aim of this paper is to outline trends and issues of urban transport in cities in developed and developing countries 1 alike, building on the experiences made in cities that are involved in the activities of Standing Commission 4 Urban Mobility Management (C4) of the Metropolis network (see Figure 1). It is thereby attempted to show both differences and similarities of the developments with special focus on the cultural, historical and social backgrounds, in which these take place. Furthermore, examples of best practice and case studies of innovative attempts to deal with the current challenges are being presented.the main input for this paper was derived from the work carried out by Standing Commission 4, which was taken as a starting point into further investigation on the challenges of mobility in cities all over the world. Furthermore, this paper also aims at defining the margins for discussions at the 8 th World Congress of Metropolis in Berlin in Figure 1 C4 member cities, background map United Nations (2004). 1 For the purpose of this paper we have distinguished between the developed and the developing world. Countries of the developed world include North America (except for Mexico), Western Europe with Scandinavia and Turkey, Japan, and Australasia. 11

13 URBAN MOBILITY MANAGEMENT The paper is divided in three parts. Part I issues some general remarks on recent developments in the cities world-wide with particular emphasis on the developments in urban transport. Furthermore, the Metropolis process and in particular the steps that lead to the establishment and the following work of Commission 4 up to this date are outlined. Part II deals with the problems of urban mobility and with the different solution approaches that are applied in the C4 cities. It is subdivided into six specific thematic areas of urban transportation. Each thematic area is introduced and described in a more general way before the focus is narrowed down to the particular situation in the cities. In addition, concrete solution approaches from selected cities are presented. In order to be able to present a wide range of best practice cases, it was chosen to also cite examples from cities outside the Commission, which seemed able to provide interesting insights into innovative and promising solution approaches. Lastly, the City Snapshots in Part III round up the picture by providing the profiles of the C4 member cities, their past and present developments as well as strategies and plans for the future. The Metropolis cities of the developed and the developing world as well as those in former socialist countries inevitably vary greatly in their economic, political and demographic characteristics.the present developments are rooted deeply in all the factors that make up the tradition of a city, its culture, its ways of life, its uniqueness.thus, transportation systems and practices are often different, yet the problems that arise from recent developments often show a striking similarity, which makes it interesting to compare developments and learn from each others experience. While this might hold true for most issues connected to urban development, it gains particular importance for the area of mobility management, since here solutions often include individual approaches tailored to specific needs. Cities have entered a phase that is characterised not by stability, but by transitions. If there is one overarching rationale of our times, it is that of the omnipresence of the need and the want for change. Urban mobility is no exception to this rule, since it has always and everywhere been a major determinant of the construction of and the life in the cities.therefore, the way mobility and transportation are being handled will have an enormous impact on the sustainability of cities now and in the future. Tradition and transformation can therefore be held as the two points of reference, in between which the future of the city is being decided General Observations: Urbanisation Trends About half of the world population lives in cities today. In industrialised countries, mainly in Europe and North America, the current urbanisation rate of 75 per cent and higher is the result of a long process of industrialisation and urbanisation, enabled and driven by processes of economic and political transition as well as innovations in transportation and communication.these cities have grown complex and somehow balanced urban structures, which were partly exported into other regions of the globe. However, these structures are now also subjected to transformation requests as they seem partly inadequate to serve modern needs and demands.additionally, their new position in the global network, the emergence of new technologies and shifting demands and expectations based on new 12

14 TRENDS AND ISSUES IN URBAN TRANSPORTATION forms of social interaction and the emergence of post-modern lifestyles seem to question the validity and viability of traditional structures. In countries of the developing world, e.g. in Latin America or South-East Asia, urbanisation rates similar to those of the industrialised countries have been accomplished in a much shorter period of time:while it took a metropolis like London 130 years to grow to a population of eight million people, in cities like Mexico City, Sao Paulo or Shanghai the same development has taken place over a 30 years period only.asian and African cities like Mumbai or Lagos are expanding even faster. Furthermore, we witness the emergence of a global shift, i.e. the majority of megacities around the world can now be found in the developing countries and countries in transition in the southern parts of the world instead of the industrialised countries of the north. Today s urbanisation processes differ from those in the past not only in regard to accelerated dynamics, but they are driven by different causes and therefore, lead to the emergence of new patterns of settlement and urban structures accompanied by unique patterns of production and consumption.while this sets free enormous potentials for innovation and new developments, the risks and problems associated with these changes are even more apparent. Overpopulation of cities and the exodus from rural areas, unequal distribution of development, limited access to work, education and social resources, increasing poverty, and disparities in living conditions as well as deterioration of the environment are major threats posed by rapid and unplanned urban growth. Moreover, industrialised countries experience a major shift in demographics, caused by declining birth rates and an increasing share of older people of the total population.therefore, migration becomes an issue, resulting in the influx of people from poorer countries and thus, changing the face and the character of the urban areas in both parts of the world. Figure 2 World population growth and urbanisation (billions of people); source:wbcsd (2001), p Rural developed Urban 0,31 developed 0,81 0,73 2,22 Rural developing 2000 Rural developed Urban 0,29 developed 0,90 1,94 2,93 Rural developing Urban developing Urban developing These developments take place against a varying background of cultural, religious and historic conditions, and while the general line of developments appears to be similar, the actual situation in the cities might vary considerably. However, the outlined developments indicate the emergence of a new significance of mobility and transportation. In order to link the cities and their functions on various levels from global over national and regional networks to inner-city arrangements and the different areas within the urban agglomeration itself integrated transport systems that incorporate the entire range of transport modes are required. Moreover, transportation gains additional importance as a means not only to overcome spatial distances, but also to improve the accessibility to economic recourses and to strengthen the cohesion of social structures. Generally, the following trends in urban mobility can be noted in cities all around the globe: Car ownership and use have grown almost universally, thereby influencing settlement patterns and urban structures in such a way that a vicious circle is being generated, leading to yet again a growth in car dependency Mobility and Transportation 13

15 URBAN MOBILITY MANAGEMENT Car use tends to be lowest in city centres where public transport is available and parking is restricted and highest in suburban areas that are poorly served by public transport. Public transport ridership has decreased in a great number of cities; however there are examples for a stabilised use of public transport, and sometimes even for a growth in passenger numbers. The use of non-motorised means of transport, namely walking and cycling, varies greatly across the world. It is highest in developing countries where often no alternatives exist, and lowest in cities of the developed world where rates of private motorisation are high. The social dimension of transportation, i.e. the degree, to which transportation influences the evolvement of social structures and practices and is in turn influenced by the way people live and travel, is often neglected, which among others causes social exclusion and the deterioration of living conditions for a large number of urban inhabitants. The number of road accidents is continuing to increase, even though some countries have succeeded in improving traffic safety. Similar to the developments in passenger transport, the share of environmentally friendly modes for freight transport is in decline, which in conjunction with increasingly globalised flows of goods leads to a deterioration of the traffic situation also in urban areas. Transportation, and particularly fuel-based road traffic, is a major and growing source of air pollution, noise and CO 2 emissions. The developments in the transport sector are influenced by a number of factors ranging from economic conditions over urban development to social practices, so that no universal solution exists. Transport systems have always been a crucial element in the development of urban areas. Industrialisation processes of the 19 th and 20 th century and the transition to modern societies could not have taken place without parallel developments and advances in transportation technology; one might also conclude that these had been prerequisites for modern production cycles and living patterns.the emergence of mass transportation systems able to carry large numbers of passengers and goods over long distances in ever decreasing time spans were drivers for the economic development leading finally to globalisation of the world economy.yet they also changed the shape and face of the cities of the developed world in various ways. At present, these developments take place once again in countries of the developing world, however, they are not only starting from different existing conditions, but moreover the accelerated dynamics of change is somewhat unique. For example, the relationship between car ownership and income is different in the developed and in developing countries.as Figure 3 indicates for selected Metropolis cities, while in the developed world high rates of car ownership usually coincide with high percapita incomes, the developing cities reach high motorisation rates while maintaining low levels of income. Also, the emergence of three clusters can be observed: 14

16 TRENDS AND ISSUES IN URBAN TRANSPORTATION Pass. Cars/1000popn Sofia Belo Hor izonte Rio de Janeiro Moscow Mexico City Omsk Br azaville Gwangju Barcelona Paris Br uxelles Ber lin Figure 3 Motorisation rates and country based per capita incomes, source of data: UN Stats. Note: Since the data for GNP/capita is country-based, some inaccuracies might occur. E.g. the somewhat surprising position of Istanbul in cluster 1 is influenced by the economic situation of Turkey as a whole where large discrepancies between the income of the urban area as opposed to that of the rest of the country exist Istanbul Mashhad Santiago GNP/capita countr y-based (US$) a) Cities of the developing world with low per-capita income and low to medium motorisation rates (Santiago, Mashhad, Istanbul, Brazzaville).These cities often have weak institutional frameworks, which causes difficulties regarding both, to raise incomes of the population and to handle transportation demands. b) Cities in transitional countries, where relatively low GNP per capita ratios meet medium to high motorisation rates (Omsk, Mexico City, Moscow, Gwangju, Rio de Janeiro, Belo Horizonte, Sofia). In many cases, these cities are located in formerly centrally planned countries, where institutional frameworks have not yet been fully transformed. c) Cities in developed countries that show both, high incomes and high motorisation rates (Barcelona, Paris, Brussels, Berlin), and which comprise a well established institutional set up. What is more, vehicle ownership often grows faster than population numbers, due to a number of factors including the need for private transport as a result of a lack in public transportation and services. However, since cars are often too expensive for large proportions of the population in cities of the developing world two-wheelers are increasingly used as a means to provide a flexible and comparatively cheap mode of (private) transportation (Figure 4). The negative consequences of private motorisation at the expense of public transport are somewhat similar in cities world-wide, most noteworthy however are negative impacts on the environment, health and quality of people s life, and also on economic developments.yet again it has to be considered that in developing countries the deterioration of environmental conditions often takes place to a much larger extent, since generally here no mechanisms for measuring, assessing and preventing environmental effects are in place.the same holds true for aspects concerning safety and accessibility. 15

17 URBAN MOBILITY MANAGEMENT Figure 4 Motorisation worldwide, source: BMZ (2003), p Car s Commercial vehicles Two-wheeler s 600 Vehicles in million While there is no simple and moreover no single answer to the great complexity and variety that characterise urban mobility, there is nevertheless a growing need to share knowledge, exchange ideas and experiences and develop guidelines for future action among cities world-wide. Therefore, a number of initiatives, programmes and (pilot) projects have hitherto been established that highlight co-operation as a major prerequisite for the improvement of urban mobility, for example the HABITAT dialogue on urban transport, the ECMT-OECD project Implementing Sustainable Urban Travel Policies or the World Bank transport strategy papers. Furthermore, development support programmes like the GTZ Sustainable Urban Transport Project and bi- and multilateral co-operations, such as the CIVITAS Initiative (Cities Vitality Sustainability) of the European Union, CODATU (Cooperation for the Continuing Development of Urban and Suburban Transportation), URB-AL (Control of Urban Mobility), and the Global Cities Dialogue, aim at bringing together cities and regions and establish co-operation and partnerships on practical issues of urban transportation. Moreover, the World Association of the Major Metropolises, i.e. the Metropolis-network, which is the premier international forum for urban issues, considers mobility in its member cities as a major aspect of future urban development and has therefore established a standing Commission to deal exclusively with aspects of urban mobility management. 1.4.The Metropolis Process The Commission 4, Urban Mobility Management, was formed in 2002 during the Metropolis meeting in Seoul. Beforehand, questions regarding urban mobility had already been discussed in different contexts, for example: Metropolis 90 congress in Melbourne: Optimisation of Transportation in Inner Cities ; Metropolis 93 congress in Montreal: Urban Transport, Technical Assistant Scheme exchange from Paris to Bucharest:Assistance for the Reorganisation and Planning of the Bucharest North Railway Station; 16

18 TRENDS AND ISSUES IN URBAN TRANSPORTATION Metropolis 96 in Tokyo: Transverse Group The Car in the City, Technical Assistant Scheme from Paris and Melbourne to Gwangju: A Study on the Improvement of the Transport System in Gwangju; Metropolis 99 in Barcelona: presentation of the final report by Commission 1 on Airports with their Surrounding Zones as Catalyst of Metropolitan Development (project duration: ). Under the umbrella of the Metropolis Association, Commission 4 is devoted to facilitating the exchange of experiences on Urban Mobility Management between its member cities and beyond.the Action Programme for the period identified the following issues among others as central for the work of Commission 4: Structural change and prevention of uncontrolled growth processes in urban areas in order to reduce traffic volumes, Improvement of parking space organisation; management and rehabilitation of areas degraded by traffic and transport, Improvement of organisation, logistic and management of road freight transport and definition of new approaches for the transportation of goods, Development of strategies to reduce private car use in city centres and support public non-motorised transport. In order to get an overview of the general conditions in transport and mobility in the member cities, two surveys have been carried out, which a total number of 20 cities replied to.as a result the brochure Basic Facts on Urban Mobility was published in summer 2003 containing the profiles of 15 participating cities. The Basic Facts provided the background for the first meeting of the Commission in Istanbul in September 2004 that focussed on the general traffic situation and problems and paid particular attention to 17

19 URBAN MOBILITY MANAGEMENT freight management strategies. In order to supply input for further action and to answer some of the questions that had arisen out of the discussions in Istanbul, a second survey was launched at the end of 2003 with the main emphasis on typical problems and negative developments in the cities and sustainable financing concepts for public transportation. Following the survey, the second meeting was held in Paris in May 2004, organised by Metropolis in co-operation with UNESCO and UATI. Discussions were centred on mobility and social cohesion, financing and best practice/worst case examples. The following two figures give an overview of the discussion and data generated in the two surveys according to the view of the member cities. Figure 5 summarises main problems and target areas as well as examples of best practice and interests in exchange of experience as stated by the cities. Grouped under the headlines of the respective problem area, the table indicates the transport-related fields of consideration that the different cities deal with under different conditions. Figure 6 further outlines an estimation of the severity of these problems, which might serve as an indicator on priorities of future measures. However, this can not be seen as conclusive, since a lot of other partly specific aspects and challenges are not included. It must be noted that the views outlined here are subjective, meaning they are based on the assessment and rating of the existing conditions rather than on factual data.taking into account the different conditions in the cities, it becomes obvious that the assessments are not necessarily based solely on factual data, but moreover they reflect considerations as to the intended and wanted state of transportation and transport generated impacts. For example, while a city like Berlin might have accident rates, which appear to be low in comparison with e.g. that of Mexico City, the degree, to which the problem is acknowledged and therefore the emphasis that is put on reducing accident rates might be the same or even higher in Berlin. Generally, the weighting of problems depends on the priorities of urban and national politics as well as acceptance levels among politicians, planners and the population. Apart from rating and general indication of problem areas, the surveys together with the workshops and conferences organised by Commission 4 also collected qualitative information of present conditions and development perspectives as well as planning and other solution approaches. These are brought together in the following Part II and supported by additional information gathered from various sources 2, thus aiming at delivering a comprehensive picture that consists of both an inside and an outside perspective. 18

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